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Federal Communications Commission FCC 98-221 Federal Federal Communications Commission FCC 98-221 Federal Communications Commission Washington, D.C. 20554 In the Matter of ) ) 1998 Biennial Regulatory Review -- ) Modifications to Signal Power ) Limitations Contained in Part 68 ) CC Docket No. 98-163 of the Commission's Rules ) ) ) ) ) NOTICE OF PROPOSED RULEMAKING Adopted: September 8, 1998 Released: September 16, 1998 Comment Date: 30 days from date of publication in the Federal Register Reply Comment Date: 45 days from date of publication in the Federal Register By the Commission: Commissioner Furchtgott-Roth issuing a separate statement. I. INTRODUCTION 1. In this proceeding, we seek to make it possible for customers to download data from the Internet more quickly. Our proposal, if adopted, could somewhat improve the transmission rates experienced by persons using high speed digital information products, such as 56 kilobits per second (kbps) modems, to download data from the Internet. Currently, our rules limiting the amount of signal power that can be transmitted over telephone lines prohibit such products from operating at their full potential. We believe these signal power limitations can be relaxed without causing interference or other technical problems. Therefore, we propose to relax the signal power limitations contained in Part 68 of our rules and explore the benefits and harms, if any, that may result from this change. This change would allow Pulse Code Modulation (PCM) modems, which are used by Internet Service Providers (ISPs) and other online information service providers to transmit data to consumers, to operate at higher signal powers. This modification will allow ISPs and other online information service providers to transmit data at moderately higher speeds to end-users. Federal Communications Commission FCC 98-221 2. This proposal stems from our review of Part 68 of the Commission's rules pursuant to section 11 of the Communications Act of 1934, as amended.1 Section 11 requires that, in every even-numbered year, the Commission (1) review all of its regulations applicable to providers of telecommunications service; (2) determine which regulations are no longer necessary as the result of meaningful economic competition; and (3) repeal or modify those unnecessary regulations.2 On February 5, 1998, the Commission released a list of 31 proceedings to be initiated as part of the 1998 biennial regulatory review.3 That list is the result of a comprehensive internal review of all existing FCC regulations supplemented by informal comments from the public.4 II. DISCUSSION I. Theoretically, PCM modems operating over the Public Switched Telecommunications Network (PSTN) are capable of data transmission rates of up to 56 kbps.5 The signal power limitations found in section 63.308 of our rules appear to limit the transmission rate of PCM modems to 54 kbps. This is due to the way PCM is decoded within the PSTN. Digital signals transmitted by a PCM modem may be converted6 into analog signals by decoders within the network that translate the digital signals into analog signals. Decoders operate by converting each discrete eight-bit digital input signal, or "word," into a specific analog output signal strength, or voltage.7 PCM technique utilizes 256 decoder output voltages, one for each of the 1 47 U.S.C. § 161. 2 Id. 3 FCC Staff Proposes 31 Proceedings as Part of 1998 Biennial Regulatory Review, FCC News (Fed. Comm. Comm'n, Washington, DC), Feb. 5. 1998, Doc. 81708, Rep. GN 98-1, General Action. 4 Id. 5 In practice, modern data transmission products, such as PCM modems, adjust their transmission rates in response to network and line conditions. The actual performance of this type of modem varies considerably depending on available network capacity, line noise, the quality of the subscriber loop and the end to end network connection, among other factors. We also note that the local loop radio frequency bandwidth and the conversion from analog to digital format typically limits the transmission rate at which analog modems can send data to about 28 kbps, although speeds up to 33.6 kbps may be achieved. The signal power limitations addressed in this Notice do not apply to terminal equipment generating analog signals that are not encoded in digital form. See 47 C.F.R. § 68.308(h). 6 Conversion is necessary only if the network is not completely digital. 7 Generally, only seven of the eight bits in a word are available to carry information, with the eighth budgeted for network use. Thus, a 64 kbps channel is theoretically capable of transmitting 8,000 eight-bit words per second, but 2 Federal Communications Commission FCC 98-221 256 possible eight-bit input combinations, or "words." Each voltage corresponds with a specific signal power level. 1. Part 68 of the Commission's rules sets technical parameters for the signals generated by terminal equipment attached to the network to ensure that those signals do not physically damage or impair the operation of that network.8 The potential harms include electrical hazards to telephone company personnel and equipment, degradation of telecommunications services to users of the network, and malfunctioning of billing equipment.9 Part 68 was enacted more than two decades ago to facilitate competition in the telecommunications equipment industry and to expand the options available to telecommunications customers for connection of customer premises equipment (CPE) and wiring to the telephone network.10 2. The technical parameters of Part 68 fall into three broad categories: signal power limitations,11 transverse balance requirements,12 and billing protection provisions.13 The signal is practically limited to a maximum information transmission speed of 56 kbps. 8 See 47 C.F.R. § 63.308. 9 Network harm includes service degradation occurring to persons other than the user of the terminal equipment and that user's calling or called party. 47 C.F.R. § 68.3. The Order establishing the Part 68 program identified four areas of potential harm that may arise as a consequence of permitting the uncontrolled direct connection of telecommunications equipment to the telecommunications network: (1) hazardous voltages, (2) excessive signal power levels, (3) excessive longitudinal imbalance, and (4) improper network control signalling. In the Matter of Proposals for New and Revised Classes of Interstate and Foreign Message Toll Telephone Service (MTS) and Wide Area Telephone Service (WATS), First Report and Order, 56 F.C.C. 2d 593, 602 (1975) ("First Report and Order"). In addition, Part 68 contains rules designed to ensure that persons with hearing aids are afforded reasonable access to the telephone network. See 47 C.F.R. § 68.1. See also 47 U.S.C. § 225 (requiring the provision of telecommunications relay services by common carriers) and § 710 (requiring hearing aid compatibility for telephones). 10 See First Report and Order, 56 F.C.C. 2d at 593 et seq.; see also North Carolina Utilities Commission et al., v. Federal Communications Commission, 552 F.2d 1036 (4th Cir., 1977). For an early history of Part 68, see Proposals for New or Revised Classes of Interstate and Foreign Message Toll Telephone Service ("MTS") and Wide Area Telephone Service ("WATS"); Revision of Part 68 of the Commission's Rules to Specify Standard Plugs and Jacks for the Connection of Telephone Equipment of the Nationwide Telephone Network; and Amendment of Part 68 of the Commission's Rules ("Telephone Equipment Registration") to Specify Standards for and Means of Connection of Telephone Equipment to Lamp and/or Annunciator Functions of Systems, Memorandum Opinion and Order, 70 F.C.C. 2d 1800 (1979). 11 47 C.F.R. § 68.308. This section imposes restrictions on the average power presented by CPE to the network in order to protect against interference among analog carriers in adjacent binder groups, and unacceptable noise and interference caused by the introduction of excessive voltage into the network, and, contingent upon the specific service 3 Federal Communications Commission FCC 98-221 power limitations of section 68.308 are designed to protect the network from crosstalk and other interference caused by excessive signal power.14 In particular, sections 68.308(h)(1)(iv) and 68.308(h)(2)(v) of our rules provide that the maximum equivalent power of encoded analog signals for other than live voice may not exceed -12 dBm15 measured over a three-second interval.16 This limitation corresponds to standard industry practice in 1975, when this section was incorporated into our rules, and was considered a conservative measure of the maximum signal power that could be introduced into the network without causing harm to network facilities or degradation of service.17 involved, pulse amplitudes. 12 47 C.F.R. § 68.310. Section 68.310 of the rules specifies minimum metallic to transverse voltage ratios for terminal equipment under specified test conditions. Transverse balance limitations control the conversion of metallic signals into longitudinal signals. Uncontrolled conversion can result in interference with adjacent channels sharing the same transmission path. This interference is generally referred to as crosstalk. 13 47 C.F.R. § 68.314. Billing protection provisions include call duration, on-hook signal, loop current, signalling interference, and similar requirements for voice and data equipment connected to the PSTN. 14 Crosstalk occurs when high powered signals are transmitted by wires in close proximity to each other and may be manifested as line noise and third party conversations. 15 "dBm" refers to decibels above one milliwatt; "-dBm" refers to decibels below one milliwatt. A decibel (dB) is ten (10) multiplied by the log of the ratio of two numbers, which in this context, are the process of a transmitted signal and a standard signal source. A difference of 3 dB corresponds to a doubling or halving of the power in a telephony circuit. The corresponding figure for doubling or halving voltage is 6 dB.
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